共和国初期北京市城区基层政权建设研究（1949-1954）

【作者】 黄利新；

【导师】 魏光奇；

【作者基本信息】 首都师范大学 ， 中国近现代史， 2008， 博士

【摘要】 晚清以来,中国的城市基层行政管理体制开始由传统向现代转变。为了增强社会控制和抽取基层资源,国家政权竭力向基层扩张,加强了城区基层政权建设。抗战胜利后,国民党在北平市城区建立了基层政权,并形成了党、政两套控制体制。国民政府在北平设置了基层政权,其特点可以概括为四句话:力量薄弱的区公所;背离初衷的保甲制度;相对完整的警察系统;虚弱的党务系统。事实上,国民政府在北平城区的基层建政并不成功。1949年1月31日,北平和平解放。没有城市管理经验的中共面临着严峻的考验,如何建立符合中共自身运作,又适合大城市管理特点的基层政权成为了中共的重要任务。在城市基层行政管理体制上,中共北平市委向各区派遣了区工作委员会,按照农村革命根据地的经验,在北平成立了市政府—区政府—街政府三级管理体制的政权。很快,中共认识到这种模式不适合以“集中”为特点的城市,因此不断调整。到1954年,北京市城区基层政权基本定型:区成为了一级政权的地位已经确定,机构设置不断完善,城区区划不断调整,并形成了以中共区委为核心的运作机制;在街道管理体制上,街道办事处和居委会管理体制形成标志着中共管理街道的体制基本定型。中共政权要获得大多数北京市民的支持就必须切实为大多数群众解决实际问题。中共基层政权在入城之后的施政工作主要从如下三个方面逐步开展:秩序建设、政权的常规工作与组织群众运动。中共建立的城区基层政权的施政方式既有一般基层政权的共性,也有中共自身特殊性,这种特殊性是由于其政权性质、政权建设的目的和运作方式的不同而出现的。中共的基层党员与基层干部建设是基层政权建设的重要组成部分。中共在北京基层建政的成功与中共在北京市组建和培养了一支合格的基层干部队伍和基层党员队伍密切相关。共和国初期,北京市基层政权的干部主要有三个来源:参与和平接管的干部、留用人员与进城之后不断地吸收新的干部。中共通过其组织的优势将这三种力量组成了一个富有战斗力的团体。作为一个执政党,其运作方式发生了很大转变,中共党支部的公开、地下党员找接整编、基层党员在城区的扩张、党员的整顿与教育明显体现了这种变化。通过党的建设,中共将自己的力量渗透到了城区的各个角落,中共的政策得到有力的贯彻,中共的意识形态得到了有效的渗透,基层政权也加强了对北京市城区的整合能力,基层政权得以巩固。共和国初期,北京市各区实行区各级人民代表会议的基层政权组织形式,其是人民代表大会形成和发展的历程中基层政权的一种过渡的组织形式。“协商”是中共民主的核心,区各界人民代表会议通过协商选举了两次区政府委员,在各界的协商下,各区区政府委员选举的结果基本上符合中共对新民主主义政权的设计。区各界人民代表会议是一个民意机构,但理论与实践总是有一段距离,中共基层政权在实际运作中逐步地将区各界人民代表会议变成了推动中心工作、实现社会动员的一个机构。中共建立的基层工会在基层建政过程中发挥了重要作用。中共为了获得工人支持,组建中共自己领导的工会成为了中共进城之后一个重要任务。中共成立了行政机构——工会办事处,并在各大厂和各行业建立了群众组织——基层工会。共和国初期,基层工会主要发挥了两方面的作用:其一,协助政府推动中心工作,尤其是在调节劳资关系、发展生产中发挥了重要作用;其二,使国家基层政权建设更加深入,在工厂中摧毁了旧有的工会机构,建立了符合中共意愿的组织机构,向工人传播中共的意识形态。共和国初期工会组织国家化趋势非常明显,工会的立场与国家立场完全一致,当三大改造完成后,工会的对立面资产阶级消失,工会的黄金时期也随之结束。构建具有中共特色的政治文化是共和国初期北京市基层政权建设的重要组成部分。中共城区基层政权非常重视政治文化的构建,中共建立基层政权的过程也是将自己的政治亚文化上升为主流政治文化的过程。北京市基层政权在推进政治文化建设过程中对以下三个方面格外注意:培养市民对新政权的认同意识;培养市民阶级斗争意识;培养人民反帝反美意识。总体来说,中共在北京建立基层政权的过程,既特点鲜明又比较顺利。更多还原

【Abstract】 From the late Qing period, the basic level administration managerial system of cities had undergone changing from tradition to modern. In order to strengthen controlling society and pump basic resources ,the state powers tried their best to extend their influence into grass—roots units and to enhance building basic power in cities.After the triumph of the War of Resistance against Japanese Aggression, KuoMinTang had built up the political power at basic level in Peking, then , there was party—government double controlling system. The basic level power of Kuomin government in Peking can be generalized by four features, including regional organization Baojia system which had departed form original intention, comprehensive police system relatively, frial party work. Obviously, Kuomin government in Peking didn’t succeed in building up the basic level power in city proper.Peking was liberated peacefully on January 1,1949. Lack of the experience of managing cities , the China Communist Party faced serious challenges, then, the urgent mission was how to build up the basic level state power which should be accorded with the operation of the CCP.According to experience of the revolution base area in rural, the Peking Regional Committee of the CCP dispatched the district committee to each regions and built up three—level managerial system encompassing municipal government, region government and the street government. Soon after, the CCP realized that the system didn’t served for the central cities, therefore, It was necessary to modify it constantly. Up to 1954, on the whole, the civic basic level power had taken shape in Beijing. Among this system, as one level power ,the role of District had been confirmed, with organization establishment consummated constantly ,administrative divisions adjusted constantly, the system which revolved around the Regional committee formed .As the street managerial system ,the street agency and residents committee indicated that the system which the CCP manage had taken shape fundamentally .To gain the support of mass citizens in Beijing , the state power of the CCP should resolve straits for the people .After entered cities ,the basic level state power performed the task around three field ,including building orders ,daily work of the power ,organizing mass movement . The execution model of the CCP’s civil basic level power had both the general character of common basic level power and the special feature of the CCP, and this feature derived form the different power quality, the aim of state and the way of operation to other state power.The building of the basic level party members and cadres of the CCP played an important role on the development of the political power at basic level. Great success which the CCP achieved was determined by a qualified team of the basic level party members and cadres which the Peking Regional committee of The CCP organized and fostered .On the early days of the people’s Republic of China, cadres of the Beijing political power at basic level stemmed form three part, such as the cadres who took over control Peking peacefully ,the members who continue to be employed and the cadres who participated in the revolution after liberation .Taking advantage of it’s organization ,the CCP made three forces form fighting plenty team .As a party in power ,the way of operation transformed to a great extent .It can be seen that changing took place from publicizing of the party branch of the CCP, being reorganized of the underground party members in Beijing ,expanding the basic level party members in city proper and being rectified and fostered of party members. Relying on the building of party ,the CCP made its organization infiltrate into each corner of city proper .As a result the policy of the CCP had been implemented deeply ,it’s ideology had been absorbed efficiently , the basic level political power had augmented integration strength to city proper in Beijing and the state power at basic level had been consolidated .On the early days of the people’s Republic of China, the people delegate conference at all levels served as the basic level political power in Beijing ,which can be seen as a organization of transition during the course of forming and developing of the people’s congress . According to the CCP ,the core of democracy is consultation . It is consultation by which the Regional people delegate conference of all circles had elected committee member of district government twice. By consulting with all circles ,committee members of each district government were in line with the design on new—democratic political power mainly. The Regional people delegate conference at all levels was an organization of poll, however, there always is difference between theory and practice. In fact, the basic level political power of the CCP had the people delegate conference at all levels become an organization steadily, which may implement central work and mobilize the mass. the early days of the people’s Republic of China.During the course of building up the basic level political power, the basic level labor union which belonged to the CCP played a prominent part. On the purpose of gaining the support of labor union ,it was a important mission for the CCP that party construct the labor union received the leading of the CCP after the party had gone into city . Not only the CCP built up the work agency of labor union as administrate department, but also started basic level labor union as mass organization in every plant and all professions .On the early days of the people’s Republic of China, the basic level labor union played a role on two field, on one side, they assisted government to carry out central work, especially on mediating relation between labor and capital and developing economy, on the other side, they pushed the building of the state power of at basic level more deeply ,furthermore, they destroyed old labor union in factories and constructed the organization which catered to party’s intention and transferred the ideology of the CCP to works. On the early days of the people’s Republic of China, the trend that the labor union nationalized was so evident that there was no difference on stand between the labor union and the government. After three—transform movement, as the opposite of the labor union, the capitalist class die out, then, the golden age of the labor union ended up with it.Political culture plays a no-replace role on consolidating the basic level political power of cities operating orderly, which sustains the social mentality of political behaviors. The basic level political power of the CCP in cities stressed highly on the construction of political culture, therefore, the course that the CCP built up the political power at basic level was the course that the CCP promote it’s own political subculture to mainstream political culture. In the process of advancing the building of political culture, the basic level political power in Beijing, paid attention to the following three sides, as fostering citizens’approval of new state power, improving citizens’consciousness of class struggle, cultivating people’s consciousness of opposing imperialism and the U.S.A.In brief, it was sharply and successfully during the CCP building the political power at basic level in Beijing. It is worthwhile to point out, if we research the feature of the CCP building the basic level political power, we must understand the CCP’s own feature, moreover, if we research the system of the basic level political power of the CCP operating, we must understand the CCP’s own system.更多还原